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ID4D
Country
Diagnostic:
Madagascar
28377_Madagascar_ID4D.indd 1 5/2/18 1:10 PM
© 2017 International Bank for Reconstitution and Development/The World Bank
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Contents
About ID4D..............................................................................................................................................................iii
Acknowledgments................................................................................................................................................... iv
Abbreviations............................................................................................................................................................ v
Executive summary...............................................................................................................................................viii
1. Introduction.........................................................................................................................................................1
Objectives of the study....................................................................................................................................................................................1
Economic and political context....................................................................................................................................................................1
2. The status of identity management in Madagascar.....................................................................................3
Institutional framework governing identity management ................................................................................................................3
Legal framework................................................................................................................................................................................................8
The civil registration process .......................................................................................................................................................................8
Functional registers and other institutions that require proof of identity...............................................................................20
Development partners.................................................................................................................................................................................. 32
3. Results and conclusions of the analysis...................................................................................................... 34
Results................................................................................................................................................................................................................ 34
Conclusions....................................................................................................................................................................................................... 35
4. Modernizing Madagascar’s identity management system........................................................................37
A framework for the modernization process....................................................................................................................................... 37
Roadmap scenarios....................................................................................................................................................................................... 43
Glossary.................................................................................................................................................................. 49
Annex A: Background information for Madagascar identity management systems analysis .................... 51
Annex B: Table of Madagascar IMSA findings....................................................................................................52
Annex C: Participants in IMSA validation workshop, June 2016.................................................................... 54
Annex D: Documents reviewed............................................................................................................................56
Annex E: Madagascar integrated ID-M model...................................................................................................57
Annex F: Legal framework report........................................................................................................................58
Annex G: FID passport.......................................................................................................................................... 80
Tables and figures
Table 1. Economic Data for Madagascar...................................................................................................................................................2
Table 2. The Malagasy Identity Management System: Civil Registration and Identification ...............................................3
Table 3. Administrative, Judicial, and Electoral Structure in Madagascar...................................................................................5
Table 4. Birth Registration of Children in Madagascar..................................................................................................................... 13
Table 5. Documents Required for CIN Application............................................................................................................................ 15
Table 6. Attributes of Different Types of Functional Register......................................................................................................20
C onte nts i
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Table 7. Services Delivered by the EDBM, 2015–2016....................................................................................................................... 22
Table 8. Documents Required at the Time of Registration for a Fiscal Identifier................................................................. 25
Table 9. Functional Registers Relying on Identity Credentials..................................................................................................... 34
Table 10. Possible Timeline for Scenario I.............................................................................................................................................44
Table 11. Possible Timeline for Scenario III............................................................................................................................................ 47
Map 1: Madagascar and Its 22 Regions.....................................................................................................................................................4
Figure 1: Civil Registration Process in Madagascar............................................................................................................................10
Figure 2: Birth Registration Process in Madagascar........................................................................................................................... 11
Figure 3: CIN Application Process in Madagascar.............................................................................................................................. 16
Figure 4: Objectives of the Programme Nationale pour l’E-Gouvernance............................................................................... 18
Figure 5: Summary of the Number of Students in Education in Madagascar........................................................................30
Figure 6: The Legal and Collaborative Foundation for an Electronic Authentication and Verification System........ 36
Figure 7: The Legal Framework for Civil Registration and Identity............................................................................................ 38
Figure 8: Upgrading the Administrative Capability of Agencies................................................................................................. 39
Figure 9: From Paper-based to Smart e-ID Cards............................................................................................................................. 39
Figure 10: Examples of Initial Steps to Improve Service Delivery...............................................................................................40
Figure 11: Potential Long-term Impact of Use of Unique Identity Numbers for Teachers................................................... 41
Figure 12: Potential Long-term Impact for Consolidated Use of Unique Identity Numbers
by the Tax Administration............................................................................................................................................................................ 41
Figure 13: Illustration of Possible Linkage between the Civil Register and the MOF Database....................................... 42
Figure 14: Aligning the CIN with INSTAT and RCS ID Numbers into the Taxpayer Number............................................. 45
Figure 15: One-stop Shop for Access to Integrated Tax Information Management System.............................................46
Figure 16: Linking Identification and Tax Payer Numbers ............................................................................................................. 47
ii I D4 D C o u ntry D iag no s t ic : Ma dagas ca r
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About ID4D
The World Bank Group’s Identification for Development (ID4D) initiative uses global knowledge and
expertise across sectors to help countries realize the transformational potential of digital identification
systems to achieve the Sustainable Development Goals. It operates across the World Bank Group with
global practices and units working on digital development, social protection, health, financial inclusion,
governance, gender, and legal, among others.
The mission of ID4D is to enable all people to access services and exercise their rights by increasing
the number of people who have an official form of identification. ID4D makes this happen through its
three pillars of work: thought leadership and analytics to generate evidence and fill knowledge gaps;
global platforms and convening to amplify good practices, collaborate, and raise awareness; and country
and regional engagement to provide financial and technical assistance for the implementation of robust,
inclusive, and responsible digital identification systems that are integrated with civil registration.
The work of ID4D is made possible with support from World Bank Group, Bill & Melinda Gates Foundation,
and Omidyar Network.
To find out more about ID4D, visit worldbank.org/id4d.
A bou t I D 4 D iii
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Acknowledgments
This report was prepared in the context of the Identification for Development (ID4D) initiative, the World
Bank Group’s cross-departmental effort to support progress toward identification systems using twenty-
first century solutions.
The WBG team wishes to thank the Governance Global Practice and all those involved in the course of
preparing the Identity Management System Analysis in Madagascar. The WBG team also wishes to thank the
participants of the opening workshop and validation workshop, and for their contributions. Furthermore,
the WBG team is grateful to each of the individual professionals who took time out of their busy schedules
to meet with us, and the valuable information they provided during the meetings in April, 2016. Similarly,
the team is grateful for the constructive feedback received during the validation workshop on June 28
and 29, 2016.
This report was written by Mia Harbitz, Matthias Witt, and Antsanirina Ramanantsoa under the supervision
of Anne-Lucie Lefebvre and Heriniaina Andrianasy.
The views expressed in this document are part of a deliberative process between Malagasy authorities
and the World Bank team regarding the status quo of identity and identification systems in Madagascar
and are not legal advice. Accordingly, no inference should be drawn as to the completeness, adequacy,
accuracy, or suitability of the underlying assessment, or recommendations or any actions that might
be undertaken resulting therefrom, regarding the enabling policy, legal or regulatory framework
(including institutional aspects thereof) for reforming identity and identification systems in Madagascar.
It is therefore recommended that, prior to undertaking any action to address any issue raised in the
deliberative process, a formal legal due diligence be performed by competent, locally qualified legal
counsel with relevant experience and knowledge of the subject matter.
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Abbreviations
AfDB African Development Bank
AIMF Association internationale des Maires francophones; International Association
of Francophone Mayors
ANRE Agence Nationale de Réalisation de l’E-Gouvernance; National Agency for the Realization
of e-Governance
APAI-CRVS Africa Programme for Accelerated Improvement of Civil Registration and Vital Statistics
AR Malagasy Ariary (currency)
ARTEC Autorité de Régulation des Technologies de Communication; Regulatory Authority
for Technology and Communication
BDE Banque des données de l’Etat; Bank of State Information
CI Civil Identification
CIF Cost, Insurance, and Freight (tax)
CIM Centre Immatriculateur; Immatriculation Center for Driver’s Licenses and cars
CIN Carte d’Identité Nationale; National Identity Card
CNaPS Caisse Nationale de Prévoyance Sociale; national social security system
COS Comité d’Orientation et de Suivi; Monitoring and Orientation Committee
CR Civil Registration
CRVS Civil Registration and Vital Statistics
DNS Domain Name System
EDBM Economic Development Board of Madagascar
EDF European Development Fund
EKA Ezaka Kopia ho an’ny Ankizy; National Program for the Rehabilitation of Birth
Registration
ENSOMD Enquête Nationale sur le Suivi des Objectifs du Millénaire pour le Développement
à Madagascar; National Survey on the Implementation of the Millenium Development
Goals in Madagascar
FAD Fonds Africain de Développement; African Development Fund
FID Fonds d’Intervention pour le Développement; Intervention Fund for Development
GDP Gross Domestic Product
GPEEC Provisional Planning and Oversight of the Workforce, Posts, and Skills, EU funded
reform project
A bbr e v iat i ons v
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HR Human Resource
ICT Information and Communications Technology
ID Identity
Id-M Identity Management
IMSA Identity Management Systems Analysis
INSTAT Institut national de la statistique; National Institute of Statistics
M&E monitoring and evaluation
MAP Madagascar Action Plan
MEN Ministère de l’Education Nationale; Ministry of National Education
MEP Ministère de l’Economie et du Plan; Ministry of the Economy and the Plan
MFPRA Ministère de la Fonction Publique et de la Réforme de l’Administration; Ministry of Public
Functions and Administrative Reforms
MFPTLS Ministère de la Fonction Publique du Travail et des Lois Sociales; Ministry of Public
Service, Labor Administration Reform, and Social Laws
MICS Multiple Indicator Cluster Survey
MID Ministry of Interior and Decentralization
MOF Ministry of Finance
MPPSPF Ministère de la Population, de la Protection Sociale, et de la Promotion de la Femme;
Ministry of Population, Social Protection, and Women
NFD Ny Fanjakana ho an’ny Daholobe; Public Sector Reform Project funded by the EU
NIF Numéro d’Identification Fiscale; Fiscal Identification Number
NIP National Indicative Programme for Madagascar
PFM Public Financial Management
PGE Politique Général de l’Etat
PMT Proxy-Means Test
PND Programme Nationale de Développement; National Development Program
PNEG Programme Nationale pour l’E-Gouvernance; National e-Governance Program
POC Proof of Concept
PREA Programme de Réformes pour l’Efficacité de l’Administration; Reform Program
for Efficiency of the Administration
RCS Registre du Commerce et des Sociétés; national commercial register
RMA Rapport Mensuel des Activités, Monthly Activity Report (UNICEF)
SDG Sustainable Development Goals
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SIGRHE Integrated Public Human Resources Administration System, EU funded reform project
SIM Subscriber Identity Module
SNISE Système national intégré de suivi, Integrated National Monitoring and Evaluation System
SSN Système Statistique National; National System of Statistics
UIN Unique Identification Number
UNECA United Nations Economic Commission for Africa
UNICEF United Nations Children’s Emergency Fund
USAID United States Agency for International Development
USD US Dollar (currency)
WBG World Bank Group
WiMAX Worldwide Interoperability for Microwave Access
A bbr e v iat i ons vii
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Executive summary
This report assesses the Malagasy identity management system in the context of the government’s ongoing
efforts to modernize the public sector, specifically pinpointing the challenges and needs of the functional
registers for trusted verification of identities and analyzing the role and modus operandi of the civil register
and civil identification agencies and processes.
Identity management is the combination of systems, rules, and procedures that are defined between an
individual and organizations regarding the entitlement, use, and protection of personal information in order
to authenticate individual identities and provide authorization and privileges within or across systems and
enterprise boundaries.
While it is easy to conclude that the system for registering, authenticating, and verifying peoples’ identities
in Madagascar is complex and fraught with room for error, it has to be recognized that there is an expressed
desire to improve and modernize the system. There is both recognition of the need to improve service
delivery to citizens and acceptance that a well-functioning system of checks and balances will contribute
to more efficient public sector management.
For example, the use of a unique identity number for both individuals and taxpaying entities is one factor
that will make verification of identities and consequently service delivery more efficient. However, on
the government’s side, there is agreement that upgrading has to be done incrementally, and that it is
sensible to start with activities and institutions that are both prepared and have the funding to undertake
improvements immediately.
According to UNICEF, the registration rate for children between 0 and 4 years is 83 percent, and there are
no data for issuance and coverage of identification cards (CIN’s).
In order to address the need for coherence between civil registration, civil identification, and functional
registers, one promising approach is to work with the tax administration. The tax administration authorities
already have a system to identify taxpayers by a unique number and increasing the coverage will add value
to the services they provide and facilitate tax collection.
What makes any modernization effort a challenge is the lack of reliable data to establish a sound baseline
upon which to measure progress. For the tax administration, this can be mitigated by reenrollment of
taxpayers, and by introducing the use of a unique identifying number.
Starting with civil registration and civil identification, there is a need to define, reduce, and formalize the
roles and responsibilities of all the entities involved in this process. It is indispensable that the processes are
trusted and trustworthy, but fewer checkpoints will make the process more efficient for all parties involved.
The collected data needs to be stored electronically for the authentication and verification processes to
become efficient and more cost effective, and there is a need for a concerted effort between government
agencies to develop a cost-sharing plan for investment in supporting technology.
viii I D4 D C o u ntry D iag no s t ic : Ma dagas ca r
28377_Madagascar_ID4D.indd 8 5/2/18 1:10 PM1. Introduction
Objectives of the study
The rationale for undertaking the analysis of the identity management system in Madagascar was a request
from the Reform Program for Efficiency of the Administration (PREA), situated within the Office of the
Presidency in Madagascar, to apply the World Bank Group’s Identity Management System Analysis (IMSA)
tool. The PREA is a key part of the government’s effort to modernize the public sector, and the results
of the IMSA will provide additional information toward strengthening the baseline for complementary
activities necessary to improve its efficiency.
The methodology used for this analysis was a combination of desk research, web-based information
collection, and meetings with stakeholders relevant to the identity management environment in Madagascar,
based on the IMSA tool, to formulate a series of suggestions and recommendations for validation by the
Malagasy authorities. A list of sources and documents that were reviewed as part of the analysis is shown
in Annex E.
In addition to assessing the operation and institutional organization of the civil registration and civil
identification agencies, the assessment also took into consideration the situation of the business register
and tax payment scheme.
The information that was gathered from interviews undertaken between April 18 and 29, 2016, was compiled
into a draft report that was presented to the stakeholders during a validation workshop on June 28 and 29,
2016. This final draft takes into account comments made by participants in the validation workshop (see
Annex D).
Economic and political context
Since its independence, Madagascar has experienced recurrent political crises, which have contributed
to economic and social fragility and inhibited development. The country is still recovering from the latest
such episode, which lasted between 2009 and 2014 and heavily affected its economy. The instability led
to the closing of numerous businesses, resulting in considerable job losses, which in turn contributed to
increased poverty. The public sector has been facing challenges to sustain the provision of basic services
such as health care, with the closing of 10 percent of the local health centers (Centres de Santé de Base),
and education, which has seen an increase in out-of-pocket expenditure for households, while at the same
time trying to control public expenditure.
Between 2003 and 2009, enrollment in primary education increased from 3.4 million to 4.3 million.
However, the number has stagnated since 2009, and the enrollment rate in primary education decreased
from 73.4 percent in 2010 to 69.4 percent in 2012,1 with less than half of students completing the primary
cycle. While the infant mortality rate (ages 0–1) has improved since 1997, falling from 93 to 42 per 1,000
live births in 2013, it has since stagnated and has thus failed to reach the target of 31 per 1,000 live births
by the end of 2015. Immunization coverage, a proxy indicator for the overall performance of the health
care system, decreased rapidly from 80 percent in 2009 to 60 percent in 2013. Only 35 percent of the rural
population currently has access to drinking water. Finally, poor childhood nutrition remains a concern.
Almost half of all Malagasy children aged 5 and under suffer from chronic malnutrition, leading to a variety
of public health problems, such as severe stunting.
1 INSTAT, Enquêtes nationales de suivi des OMD à Madagascar (2012–2013).
1. I ntro d u ct i on 1
28377_Madagascar_ID4D.indd 1 5/2/18 1:10 PMAs part of the recovery efforts, the government made the “fight against poverty through inclusive growth”
its primary objective and has developed a strategy focused on three pillars:
Improving governance,
Promoting economic recovery, and
Expanding the access to basic social services.
This strategy was outlined in the Politique Général de l’Etat (PGE) and translated into a 2015–2019 National
Development Program (Programme Nationale de Développement, PND) with an implementation plan.
The April 2016 economic update from the World Bank revealed a slow economic recovery in 2015, resulting
from unexpectedly weak growth in the tourism and mining sectors. Catastrophic weather during the first
half of 2015 also took its toll on the economy, leading to higher inflation and reduced household purchasing
power. GDP growth is estimated at 3.0 percent in 2015, and annual inflation increased to 7.6 percent. Since
2014, annual foreign direct investment averaged around US$250 million (or 2.3 percent of GDP). This is
significantly below the average of the five years before 2014, which coincided with the investment phase
of large mining installations. Economic data for Madagascar are shown in Table 1.
As a contribution to the government’s ongoing recovery efforts, there is a need to improve the demographic
and statistical bases for decision making. Madagascar has not carried out a national census since 1983, and
it is expected that the Identity Management Systems Analysis (IMSA) will provide insight into immediate
actions to improve decision making. IMSA is not a substitute for a census, nor will it provide the vital
statistics needed by Madagascar; nevertheless the results of the assessment may be used to help define
the roadmap ahead.
Table 1. Economic Data for Madagascar
Population 23,571,713 hab (World Bank, 2014)
Density 40.52 hab/km² (World Bank, 2014)
Population growth 2.78% (World Bank, 2014)
Life expectancy 64 years (World Bank, 2014)
GDP per capita (USD) 444.96 (INSTAT, 2014)
Growth rate (%) (INSTAT, 2014)
Primary sector 3.3
Secondary sector 9.2
Tertiary 2.3
Inflation rate (%) 7.4 (INSTAT, 2015)
Exports (billion USD FOB) 1.382 (INSTAT, 2015)
Imports (billion USD CIF) 1.922 (INSTAT, 2015)
FDI (billion USD) (2014, Central Bank of Madagascar, INSTAT)
Flows 210.37
Stock 4,470.62
Ranking DBI 2016 164th
Source: Economic Development Board of Madagascar, 2016.
2 I D4 D C o u ntry D iag no s t ic : Ma dagas ca r
28377_Madagascar_ID4D.indd 2 5/2/18 1:10 PM2. The status of identity
management in Madagascar
Institutional framework governing
identity management
Identity management (Id-M) is the combination of systems, rules, and procedures that are defined between
an individual and organizations regarding the entitlement, use, and protection of personal information
in order to authenticate individual identities and provide authorization and privileges within or across
systems and enterprise boundaries. An identity management system is understood as the technical and
organizational infrastructure used to define, design, and administer the attributes of an identity.
In order to comply with the terms of reference for undertaking an assessment of Madagascar’s identity
management system, this report focuses on the information obtained from consultations with ministries
and government agencies as well as development partners during the period of April 18–29, 2016, as well
as from the validation exercise that took place on May 28 and 29, 2016.
The Id-M system in Madagascar is fragmented and complex and fails to take advantage of opportunities
to facilitate citizens’ or customers’ interaction with the public sector in instances where authentication
or verification of identities is required. The Malagasy identity management system encompasses the civil
register that issues certificates and the civil identification register that issues national identity cards, both
located within the Ministry of the Interior (see Table 2). Furthermore, the report examines the operational
realities of other government stakeholders working with functional registries, such as business registration
systems and beneficiary registers for social programs. Efforts to reform and streamline different aspects
of the Id-M infrastructure are also addressed, including the role of international development partners that
support specific public sector reform efforts.
The purpose of both registers is to maintain records that can attest to the legal identity of individuals in
the population, and to issue a legal document that will give the bearer access to benefits and services.
The benefits and services are provided by other agencies that will usually keep their own records of those
who they service. These records are referred to as functional registers, for example, detailing those in the
education or health care systems, databases of taxpayers and driver’s licenses, and so on.
Table 2. The Malagasy Identity Management System: Civil Registration and Identification
Civil Registration Civil Identification
Activity Creates a record with an individual’s Aggregation of attributes that uniquely identifies
biographic information the individual, such as the signature, a photograph, a
unique number and/or biometrics
Output A certificate of the vital event as proof of An identification credential, such as an identity card
identity
2. T he status of id e ntity ma nag e m e nt i n Madagas car 3
28377_Madagascar_ID4D.indd 3 5/2/18 1:10 PMThe rest of this section describes the institutional, administrative, and operational aspects of the identity
management system:
the overall institutional and administrative framework that supports and governs the identity
management environment in Madagascar;
the operational context across a variety of different agencies and registries; and
the role of two key international development partners in the country.
Institutional and administrative aspects of civil registration
and identification
The foundation of Madagascar’s current decentralized administration was established in the 1992
constitution but has undergone various changes over the past 25 years. As of 2016, public administration
in Madagascar is organized in five different levels. The six autonomous provinces are at the highest level. At
the second level, the provinces are subdivided into 22 regions. At a more local level, regions are comprised
of 117 districts, 1,693 municipalities, and 18,251 fokontanys, an administrative subdivision closely related
to the traditional Malagasy village administration. The fokontany chiefs are appointed by the chief of the
district based on a list of candidates put forward by the fokontany residents themselves.2
Map 1: Madagascar and Its 22 Regions
Source: World Bank.
2 Decret 2015-592 and 2015-593, http://www.mid.gov.mg/mid-archive-decret/2. And decree 2009-890 of July 2, 2009.
4 I D4 D C o u ntry D iag no s t ic : Ma dagas ca r
28377_Madagascar_ID4D.indd 4 5/2/18 1:10 PMTable 3. Administrative, Judicial, and Electoral Structure in Madagascar3
Administrative Structure Judicial Structure Electoral Structure
6 provinces Supreme Court 6 provinces
22 regions Military Court 87 single-member constituencies
117 districts High Court of Justice 32 multi-member constituencies
1,693 municipalities 6 Courts of Appeal
18,251 fokontany 40 Courts of First Instance
Civil identification is handled at the district level, which issues the national ID card (Carte d’Identité Nationale,
CIN) and keeps records of all CIN applicants. In rural settings and under exceptional circumstances, the
district office may have the authority to delegate this responsibility to the municipal offices instead.
The role of the municipality is primarily within civil registration. Offices of the municipalities maintain birth,
death, and marriage registers and issue the respective certificates to applicants.
The fokontany (neighborhood or local structure) subdivisions are closely aligned with more traditional ways
of governance in Madagascar and hold great cultural significance, particularly in rural areas. A fokontany is
a local structure that is smaller than a municipality and is both formal (existence of an administrative “Chef
Fokontany”) and informal (neighborhoods), under which communities are organized. Fokontanys have
an administrative mandate (keeping voters’ rosters, keeping community rosters, delivering verification of
residency, and so on) while also organizing the community around resolution of neighborhood-related
issues (local security and so on). Their executive power is rather limited, but they continue to play an
important role in local dispute resolution, as well as in identity and residence verification (see page 7).
Regarding the registration processes, the role of these different administrative entities differ. According to
the legal framework pertaining to civil registration and civil identification, the municipalities are charged
with the civil registration process (see page 7), while civil identification is formally handled by the districts—
with the possibility, nonetheless, of delegating this task to the municipalities (see page 9). The courts of
first instance, or local tribunals, play an important role in both the civil registration and identification
processes. They rule on the enrollment of birth after the legal deadline for registering births has passed
(12 days); provide arbitration and rulings regarding disputed adoptions, marriage, or divorces; revise and
verify records; and store duplicate copies of the registration books.
In practice, the fokontany plays a pivotal role in the registration process. As the lowest administrative
structure, it registers citizens in an informal, local population register, which eventually forms the basis for
the residence certificates required at the time of registration with the civil identification system as well as
the electoral roll. This role, however, is a customary role that developed out of national practice; there is no
legally defined role within the registration process for the fokontany at any point.
National development plan
The dual political and economic crisis that hit the country in 2008–2009 severely hampered Madagascar’s
economic growth and development progress. To address the country’s development challenges, the
government developed a national development plan (Plan National de Development, PND), which was
approved by the parliament in December 2014.
3 The High Court of Justice and the Military Court govern specific jurisdictions outside of the regular court system.
2. T he status of id e ntity ma nag e m e nt i n Madagas car 5
28377_Madagascar_ID4D.indd 5 5/2/18 1:10 PMOne of the main priorities “is to increase tax revenue, which is among the lowest in the world as a
share of GDP,” according to the WBG’s Country Diagnostic from 2015.4 The report goes on to state that
“Madagascar’s revenues are not adequate for supporting the ambitious strategy outlined in the National
Development Plan (PND) 2015–2019. There is scope for improving the efficiency of expenditure as well,
but most of the challenges and constraints arise from insufficient revenue. On the plus side, the authorities
have a track record of maintaining macroeconomic stability and conducting prudent debt management.”
The focus of the PND revolves around five strategic themes:
1. Governance, the rule of law, security, decentralization, democracy, and national solidarity;
2. Preservation of macroeconomic stability and support for development;
3. Inclusive growth and territorial roots of development;
4. Building adequate human capital for the development process; and
5. Valorization of natural capital and resilience to disaster risks.
In particular, the PND confirms the government’s commitment to maintain sound macroeconomic and
public financial management (PFM), to support the provision of better services to citizens across the
country, and to promote economic development building on local potentialities.
The Integrated National Monitoring and Evaluation System
The Integrated National Monitoring and Evaluation System (“Système national intégré de suivi,” SNISE)
is the principal framework for monitoring and evaluation of development programs within the country.
It was originally developed in 2007 as a tool to ensure regular follow-up of the Madagascar Action Plan
(MAP), a development policy platform for the country similarly launched in 2007. The SNISE framework
was comprised of 69 overall indicators and 470 subindicators relating to various development outcomes
envisioned in the MAP document. The first SNISE-based report was published in 2008 on the basis of
national surveys and administrative sources.
The political crisis of 2009 led to the suspension of the MAP as well the SNISE monitoring and evaluation
(M&E) mechanism. With the approval of the PND in 2014, a revised SNISE framework was introduced,
following the five areas of the PND through 20 framework goals, 22 global indicators, and 433 subindicators.
It is important that the registration and identification goals and progress align with the relevant goals set
out in the PND and that their respective indicators are introduced in the updated SNISE framework.
Programme de Réforme pour l’Efficacité de l’Administration
The Programme de Réforme pour l’Efficacité de l’Administration (Program of Reform for the Efficiency of the
Administration—PREA) is the coordinating entity for public sector and governance reforms in Madagascar.
The PREA is anchored in the Office of the President and works with different ministries and sectors to
coordinate all reform efforts on the operational side. The Comité d’Orientation et de Suivi (Monitoring and
Orientation Committee—COS) of the PREA is the strategic steering committee for public sector reforms
and includes high-level representatives (Executive Secretary) from all ministries and representatives
of donors and partners. The PREA has a crosscutting role to supervise and monitor reforms while also
coordinating donor funded government projects on public sector reform, including World Bank, African
Development Bank, and European Union funded projects.5
4 http://documents.worldbank.org/curated/en/743291468188936832/Madagascar-Systematic-country-diagnostic
5 The PREA was instituted by decree N.2005-803 of November 23, 2005, and revised by decree N.2012-661 of June 28, 2012.
6 I D4 D C o u ntry D iag no s t ic : Ma dagas ca r
28377_Madagascar_ID4D.indd 6 5/2/18 1:10 PMInstitut National de Statistique
The National Institute of Statistics (Institut national de la statistique, INSTAT) is the government entity
charged with collecting, analyzing, and producing statistics and information on social, economic, and
demographic indicators in Madagascar. Situated in the Ministry of the Economy and Planification, INSTAT’s
mission is to make available these statistics in order to measure Madagascar’s progress in areas of economic
and social development, to coordinate and combine the data collection efforts of other agencies, and to
produce analytical and descriptive reports in order to help shape public policies in a variety of sectors.
In its current form, INSTAT was established in 1995 by public decree (95-596, 12 September 1995). Prior to
1995, the entity was known as the “Bank of State Information” (Banque des données de l’Etat, BDE) and
formally placed under the Office of the President.
Part of INSTAT’s mandate is the collection and analysis of vital statistics delivered by the civil registration
system. To the extent possible, the institute publishes updates on vital statistics. Given the relatively low
coverage of reliable data, however, these publications are made available on an irregular basis and usually
only provide data for a small selection of urban centers or regions. A fully operational civil registration
system would be able to provide profiles on the demographic and socioeconomic characteristics of the
population. The incompleteness of vital statistics generated by the current system has been acknowledged
by INSTAT and is one of the factors currently under review in the realm of the Africa Programme for
Accelerated Improvement of Civil Registration and Vital Statistics (APAI-CRVS) comprehensive assessment.
INSTAT’s main body of work comes in the form of indicator surveys, dealing with all topics relevant to
the economic, social, and demographic development of the country. The institute carried out a multiple
indicator cluster survey (MICS) for the south of the country in 2012, as well as a comprehensive set of
surveys aimed at tracking Madagascar’s progress toward the Millennium Development Goals in 2012–
2013 (Enquête Nationale sur le Suivi des Objectifs du Millénaire pour le Développement à Madagascar—
ENSOMD). As far as death registration and health data are concerned, INSTAT makes the information
collected available to the Ministry of Health. However, no official rules or guidelines exist regarding the
collection, storing, and handling of health data on behalf of the institute. Since cause of death data is not
officially collected by the civil registration mechanism, there is little informative value for national public
health policy, such as antidisease campaigns, in official vital statistics data.
The institute also tracks information regarding fiscal policies and economic activity in Madagascar.
Companies wishing to do business in the country have to register with the institute, and tax data as well as
revenue figures have to be reported on a regular basis. Upon registration, businesses are registered in an
internal database with an INSTAT-specific identifier. A discussion to merge the INSTAT identifier with other
business-related identifiers used by other agencies is currently under way (see page 17).
INSTAT is also responsible for censuses. A population census is planned for 2017, and recently a national
census committee was established to co-coordinate the design and planning for the census that will be
executed by INSTAT. The last census in the country was held in 1993 and predates the creation of the
institute.
Civil Registration and Vital Statistics Assessment
Madagascar is part of APAI-CRVS, a joint initiative by the African Union Commission (AUC), the African
Development Bank (AfDB), and the United Nations Economic Commission for Africa (UNECA), aimed at
assessing and improving civil registration and vital statistics (CRVS) systems across the continent through
targeted multilateral interventions. The goal of the program is to ensure that CRVS programs across the
continent are designed and perform to international standards. In order to do so, the program eventually
aims to provide managerial support to countries wishing to participate in this regional effort, with the option
of undergoing a standardized comprehensive assessment before developing a national CRVS reform plan.
2. T he status of id e ntity ma nag e m e nt i n Madagas car 7
28377_Madagascar_ID4D.indd 7 5/2/18 1:10 PMThe current Malagasy government has requested such a national assessment within the APAI-CRVS
framework and hosted a team of experts from the above-mentioned institutions for a comprehensive
evaluation between May and October 2016. The assessment, according to APAI-CRVS documents, “aims
to identify strengths and weaknesses in the current system, draw lessons from what has worked over time,
and how improvements have been made and sustained.”6
The strengths and weaknesses of the civil registration system identified during this IMSA assessment
will undoubtedly contribute to the APAI-CRVS assessment. The IMSA assessment, with its holistic focus
on identity systems management and functional registries, should therefore be regarded as a different
exercise with complementary outcomes rather than a competing effort.
Legal framework
Madagascar has a longstanding tradition of anchoring civil registration and identification in a legal
framework. The first legal guidelines governing the registration of Malagasies go back to precolonial times
and the Malagasy monarchy of the nineteenth century. The country has since seen various revisions of its
legal framework with regard to civil registration and identification, but remains committed to continuous
legal improvement and clarification.
A detailed analysis of the legal framework governing identity management in its current state can be found
in Annex H.
In addition to updating current laws and regulations, Madagascar needs to draft and approve new
legislation in order to correspond to twenty-first century technological, institutional, and legal challenges
that concern civil registration, civil identification, and the management of functional databases.
A point of concern is the uncertainty surrounding the data protection law of 2014, which aims to legally
protect personal data stored in functional registries of the state, whether submitted through paper-based
or electronic channels, including online e-governance services that may not yet exist. While the text of the
law follows international best practice, there is reasonable doubt that it can be adequately implemented at
this point, risking the exposure of citizen’s personal information in an administrative environment that does
not currently have the infrastructure required to rigorously protect personal data.
Another cause for concern is the outdated framework regarding civil registration. The current time period
allowed for parents to register the live birth of a child is 12 days. International best practice asks for at least
30 days for birth registration, allowing the parents to make the necessary arrangement in cases where
the registration office is far away. Other nations in Sub-Saharan Africa have extended the registration
deadline even further. Madagascar itself aimed to extend the registration to 45 days in the early 2000s,
but implementation of a civil registration reform was stalled in the aftermath of the 2009 crisis. Given the
significant disadvantage unregistered children will find themselves in for the rest of their lives, a review of
the civil registration law at this point is not only desirable but imperative for any modernization activities
that the government will undertake with respect to identity management.
The civil registration process
Civil registration is defined as “the continuous, permanent, compulsory recording of the occurrence and
characteristics of vital events”7 (live births, deaths, fetal deaths, marriages, and divorces) and other civil
6 Strategy for Conducting Assessment of and Planning for National Civil Registration and Vital Statistics Systems. UNECA document
E/ECA/CMRCR/2/EXP/15. 30 July 2012.
7 Handbook on Civil Registration and Vital Statistics Systems. UNSD. 1998. http://unstats.un.org/unsd/publication/SeriesF/
SeriesF_73E.pdf
8 I D4 D C o u ntry D iag no s t ic : Ma dagas ca r
28377_Madagascar_ID4D.indd 8 5/2/18 1:10 PMstatus events pertaining to the population as provided by decree, law, or regulation, in accordance with the
legal requirements in each country. The information in the civil register is an essential source of vital statistics.
The responsibility for civil registration in Madagascar is divided between the Ministry of the Interior and the
Ministry of Justice. Registration tasks are generally carried out by the municipalities, which have designated
staff working in their registration offices to deliver the service to citizens. Madagascar uses a two-book
system for any registration of a vital event, that is, each type of event has a separate book. Local trial
courts (Tribunaux de Premier Instance) receive a copy of all registry records from within their jurisdiction.
In addition, if a child’s birth is not registered within the legally mandated 12 days, the registration must be
processed through the trial courts, which adds costs and incurs further delays. The acts of birth and death
registration, as well as the original copy of the respective certificates, are supposed to be free of charge.
However, a fee is being leveraged once birth registration is being handled by the local trial court, or if a
citizen requires extra copies of certificates. This fee varies depending on the municipality or court and
could be anywhere between AR 100 and 1,600 (about USD 0.03–0.52).
The civil registration system (“Etat Civil”) includes the following acts of registration (see Figure 1):
Birth
Marriage
Divorce
Simple adoption
Juridical adoption
Recognition of parental responsibility
Rejection of paternity
Death
Within the Malagasy context, it is possible to adopt a child officially, as well as to adopt another person
of any age semi-officially for legal and cultural purposes. These “simple adoptions” are recorded by the
civil registration service and require the presence of two witnesses as well as a written statement by the
fokontany attesting to the residency status of the parties in question.
Simple adoption is rooted in customary traditions, but legally inscribed in Art. 18 of Law 2005-014 governing
adoption. Its purposes, according to the legal text, is to create between two persons a virtual parental link,
either to tighten existing family relations or to establish them where desired. Acts of simple adoption
can only be granted to two people of Malagasy citizenship and residency. Both children and adults can
be adopted through this procedure. However, whereas the more formal adoption process results in the
full integration of an adopted child into a new family, a minor adopted through the less-restrictive simple
adoption procedure continues to be part, legally, of their original family. Further details regarding the legal
and customary origins of this procedure may be found in Annex F.
The civil registration process is a two-book registration, with handwritten entries in rural areas and by
typewriter in most urban settings. There are a few instances in Antananarivo where pilot projects involving
computer-based civil registration have been carried out, such as in the municipal offices of the IVth
arrondissement. UNICEF donated computers for the pilot project, while standardized software for civil
registration processes was supplied by the International Association of Francophone Mayors (AIMF).
Despite the potential for more efficient work streams with computerized registration and digitalization
of old records, these initiatives suffer from lack of adequate infrastructure, funding for sustained use, and
insufficient capacity to train staff.
Both registration books, once filled, are supposed to be delivered to the local trial court at the end of the
year for revisions and checks. Ultimately, one set of records remains in the trial court’s archives, while the
other one is returned to the municipality to be archived accordingly.
2. T he status of id e ntity ma nag e m e nt i n Madagas car 9
28377_Madagascar_ID4D.indd 9 5/2/18 1:10 PMFigure 1: Civil Registration Process in Madagascar
Source: Authors’ elaboration.
Birth registration
In order to register (enroll) a birth and obtain a birth certificate, the mother or father of the child must
declare the birth to the municipality within 12 days and provide the following information:
Place and date of birth
Full name and sex of the baby
Full names and address of parents
Parents’ places and dates of birth
10 I D4 D C o u ntry D iag no s t ic : Ma dagas ca r
28377_Madagascar_ID4D.indd 10 5/2/18 1:10 PM Parents’ occupation
Date of parents’ marriage, if applicable
Family book, if parents are married by the state
The above details must be verified by a medical notification of live birth if the child was born in a health
facility. In cases of home birth in the absence of trained medical personnel, a certified live birth notification
issued by the local fokontany will also be accepted.
If the parents are married by the state or in a civil partnership, details regarding their civil status will be
taken from the “family book,” a booklet containing a family’s civil registration details that is issued to
couples upon registration of their marriage. The child’s biographical information will also be added to the
family book.
Birth registration completeness is reported at 83 percent. In the absence of reliable countrywide vital
statistics taken from the civil registration system, this figure is based on INSTAT’s 2012–2013 ENSOMD
survey, measuring Madagascar’s progress at the time toward fulfilling the Millennium Development Goals
(see Table 4). However, regarding policy decision in regard to registration and vital statistics, there are a
few problems associated with this figure. The data from the ENSOMD survey only concerns children under
the age of 5 and does not give an indication regarding registration status of adults and children aged
5–18. Additionally, the figure includes respondents claiming to have registered their child who are not in
possession of a birth certificate. The number of children aged 0–5 that have been registered with a valid
birth certificate lies at 61.8 percent. Most services and processes in question require a valid birth certificate
as a form of identification.
Figure 2: Birth Registration Process in Madagascar
Source: Authors’ elaboration.
2. T he status of id e ntity ma nag e m e nt i n Madagas car 11
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